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Expert  Survey  of 

Public  School 

System 

Boise,  Idaho 


Digitized  by  the  Internet  Archive 
in  2007  with  funding  from 
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EXPERT  SURVEY 


OF 


PUBLIC  SCHOOL 
SYSTEM 

BOISE,  IDAHO 


EDWARD  C.  ELLIOTT 

Professor  of  Education  and  Director  of  Course  of  Training  of 
Teachers,  University  of  Wisconsin 

CHARLES  H.  JUDD 

Director  School  of  Education,  Professor  of  Education 
University  of  Chicago 

GEORGE  D.  STRAYER 

Head  of  Department  and  Professor  of  Educational  Administration 
Teachers'  College,  Columbia  University  ^ 


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To  the  Honorabe  Board  of  Education  of  Boise,  Idaho. 

Gentlemen :  Acting  on  the  invitation  of  your  honorable  body 
and  of  the  Superintendent  of  Schools,  the  undersigned  have 
made  an  inquiry  into  the  couduct,  organization  and  equipment 
of  the  public  sc^iools  of  Boise  and  beg  leave  to  report  as 
follows : 

SCOPE  OF  THE  EXAMINATION. 

All  of  the  members  of  the  committee  of  inquiry  were  able 
to  canvass  in  detnil  the  course  of  study,  the  methods  of  super- 
vision, the  character  of  the  teaching  staff,  the  distribution  and 
progress  of  children  through  the  grades,  the  material  and 
equipment  and  the  expenditures  involved  in  the  conduct  of  the 
system,  and  concur  in  the  findings  with  regard  to  these 
matters. 

The  inquiry  was  greatly  facilitated  through  the  co-operation 
of  the  superintendent,  supervisors  and  staff  in  the  office  of  the 
superintendent.  A  very  large  part  of  the  information  neces- 
sary was .  immediately  available  in  the  form  of  the  records 
collected  in  the  routine  of  ordinary  administration,  and  where 
additional  facts  were  required,  these  were  promptly  supplied 
by  the  school  officers  or  secured  through  personal  inspec- 
tion on  the  part  of  one  or  more  of  the  members  of  the  com- 
mittee. The  joint  report  is  supplemented  by  the  individual 
report  of  one  of  the  members  of  the  committee  who  visited 
the  schools  and  observed  the  class  of  work  in  various  parts  ot 
the  district 

THE  COURSE  OF  STUDY. 

The  course  of  study  is  comprehensive.  It  includes  the  fun-r 
damental  subject?  which  have  long  been  recognized  as  es- 
sential m  any  school  training,  and  also  includes  those  forms  of 
organized  knowledge  and  activity  which  in  the  last  generation 
have  transformed  and  enriched  the  course.  Especially  com- 
mendable is  the  full  and  unqualified  recognition  of  the  im- 
portance of  such  matters  as  health,  recreation  and  various 
types  ot  practical  industrial  activity. 

There  seems  to  be  an  opportunity  to  enlarge  somewhat 
the  amount  of  instruction  in  nature  study  offered  in  the  ele- 
mentary grades.     There  will  undoubtedly  develop  an  increas- 


ing  emphasis  upon  study  as  distinguished  from  recitation 
within  the  school  Without  attempting  to  comment  more 
fully  on  the  technical  matters  involved  in  the  enlargement  of 
the  course,  all  of  which  has  been  discussed  with  the  super- 
intendent pnd  supervisors,  the  committee  would  report  that  in 
point  of  richness  of  the  course  of  study  the  Boise  school 
system  takes  high  rank  among  American  city  systems. 

The  course  of  study  is  closely  adapted  to  practical  and 
local  needs.  One  of  the  most  conspicuous  virtues  of  the 
course  of  study  is  its  elimination  of  irrelevant  matter  and 
its  emphasis  upo^i  types  of  training  which  will  connect  school 
\vork  with  the  practical  activities  into  which  graduates  go. 
Comment  will  be  made  later  upon  the  conspicuous  enlargement 
in  school  r.ttendance  which  has  resulted  from  the  improve- 
ment of  the  course  of  study.  Special  commendation  is 
due  at  this  poini  to  the  success  with  which  industrial  and 
intellectual  inten^sts  have  been  co-ordinated  without  sacri- 
ficing the  legitimate  emphasis  upon  reading,  mathematics, 
history,  languages  and  all  of  the  common  types  of  training. 
The  pupils  have  been  brought  into  an  environment  of  practical 
.activity  which  gives  them  a  respect  for  industry  and  at  the 
same  time  develops  personal  efficiency  in  dealing  with  do- 
mestic and  business  problems  The  course  of  study  which 
results  is  the  broadest  and  best  solution  of  the  demand  for 
industrial  education  While  not  overlooking  many  other 
excellent  lines  of  work,  the  committee  finds  that  the  various 
courses  in  agriculture  are  highly  commendable  as  distinct  so- 
lutions of  ;i  practical  local  problem. 

The  committee  begs  leave  to  call  attention  to  three  logical 
developments  of  ihe  situation  which  have  already  been  worked 
out. 

•  First,  the  Boise  schools  are  admirably  equipped  by  virtue 
of  the  broad,  practical  course  of  study  which  has  been  adopted 
to  take  care  of  more  of  the  time  of  the  pupils  than  is  sys- 
tematically provided  for  in  the  present  school  program.  The 
course  of  rtudy  is  rich  enough  so  that  it  would  be  advan- 
tageous to  rpread  it  over  more  hours.  The  activities  called  for 
on  the  part  of  the  pupils  is  varied  enough  to  avoid  the  kind  of 
fatigue  that  results  from  over-con finemerr  The  individual 
program  of  teachers  need  not  be  leng^thened.  The  advan- 
tages of  such  an  extension  of  the  school  day  would  be  found 
in  the  systematic  organization  of  children's  activities.       The 


city  of  Boise  ha--  taken  a  long  step  in  advance  of  most 
American  commi  rjities  in  providing  for  the  recognition  of 
lecreation  and  agriculture  as  legitimate  phases  of  school  train- 
ing. The  complete  utilization  of  the  equipment  now  Qn  hand 
dictates  the  extension  of  the  time,  during  which  these  op- 
portunities shall  be  used.  The  use  of  schools  during  the  sum- 
mers as  well  as  during  a  longer  school  day  and  week  is  urgent- 
ly recommended. 

Second,  the  Boise  schools  are  organized  with  respect  to 
subjects  of  instruction  with  such  a  clear  recognition  of  the 
demand  of  economy  that  it  is  a  very  short  step  to  a  readjust- 
ment of  the  relation  of  elementary  schools  and  high  school, 
such  that  a  year  •  ;r  more  of  time  is  saved  for  each  child.  The 
present  eighth  grade  has,  through  the  reorganization  of  the 
work,  become  a  mixture  of  high  school  courses  and  elementary 
courses.  The  pupils  will  gain  in  enthusiasm  for  their  work 
and  in  breadth  of  opportunities,  if  the  eighth  grade  is  aband- 
oned and  the  mintr  adjustments  needed  are  worked  out  in  the 
high  school  course  These  minor  adjustments  have  been  con- 
vassed  in  detail  and  can  be  made  without  any  sacrifice  what- 
soever of  the  interests  of  the  pupils. 

Third,  the  development  of  the  course  of  study  in  the  high 
school  has  no  upper  limits  except  those  which  are  dictated 
by  the  ability  of  •■he  city  to  equip  advanced  courses.  In  agri- 
culture, in  mechanics,  the  character  of  work  now  under  way 
is  such  as  to  suggest  strongly  the  desirability  of  a  conserva- 
tive but  steady  extension  of  the  course  into  the  field  commonly 
thought  of  as  belonging  to  the  college.  There  is  no  legitimate 
reason  why  a  fully  developed  city  school  system  should  not 
offer  to  adults  in  the  community  advanced  courses  in  science 
and  letters.  There  is  no  reason  why  students  who  ^  want 
more  than  four  years  of  training  should  not  get  five  years. 
The  Boise  high  school  could  carry  on  such  advanced  work 
without  serious  additional  expenditure.  Such  advanced 
courses  are  the  n?tural  sequel  to  the  comprehensive  organiza- 
tion already  developed. 

SUPERVISION. 

The  supervisory  staff  of  the  school  system  is  organized  in 
accordance  with  the  practice  prevailing  in  the  most  progres- 
sive cities  of  the  United  States.  Under  the  immediate  direc- 
tion of  the  Superintendent  of  Schools  are  the  three  general 


y 


supervisors :  one  for  the  primary  grades,  one  for  the  grammar 
grades,  and  one  for  the  high  school.  There  are,  in  addition 
to  these  general  supervisory  officers,  directors  of  the  v^ork 
in  physical  education,  industrial  arts,  household  arts,  music 
and  art.  There  are  also  a  director  of  playgrounds  and  a 
school  nurse  working  in  co-operation  v^ith  all  v^ho  give  in- 
struction or  who  supervise  the  work  in  the  schools  to  the  end 
that  the  physical  well  being  of  the  children  may  not  be  neg- 
lected. 

We  have  been  impressed  by  the  recent  careful  reports 
presented  to  the  superintendent  by  these  supervisory  officers. 
There  is  evidence  throughout  of  genuine  co-operation  among 
the  officers,  and  between  them  and  the  teachers.  We  believe 
that  these  supervisors  in  their  contact  with  the  teachers, 
through  constructive  criticism  and  suggestions,  have  done 
much  to  improve  and  to  unify  the  work  of  the  schools.  We 
suggest  that  the  nigh  school  would  profit  by  the  development 
of  a  system  of  c:)nferences  with  the  teachers  in  the  upper 
grades  of  the  grammar  schools.  The  supervisor  of  these 
grades  should  certainly  be  in  contact  with  the  high  school.  The 
supervisor  of  the  primary  grades  should  in  like  manner  be  in 
intimate  contact  with  the  upper  grades.  It  is  interesting  to 
note  that  all  of  the  supervisors  devote  their  principal  energies 
to  direct  contact  with  pupils  and   teachers. 

We  believe  thnt  the  work  of  the  supervisory  staff  might 
to  advantage  be  farther  developed  along  three  lines.  First,  in 
addition  to  the  present  irregular  exhibits  of  the  work  of  pupils 
there  should  be  provided  a  continuing,  but  constantly  changing, 
exhibit  of  the  various  phases  of  school  work  in  order  that  the 
best  results  acco^aplished  in  the  system  may  be  made  con- 
stantly available  for  all  of  the  teachers.  Such  an  exhibit  would 
consist  of  rhe  fobcwing  types  of  materials:  Written  work  of 
pupils,  examples  of  the  work  in  drawing,  suggestions  for  sup- 
plementary reading  for  pupils  and  teachers,  collections  of 
illustrative  materiid  found  valuable  in  classroom  teaching,  ex- 
amples of  constructive  work,  whether  in  paper,  wood,  clay 
or  other  medium,  teachers'  plans  which  have  been  successfully 
carried  out,  and  the  like. 

In  addition  to  the  work  done  by  the  supervisors  in  demon- 
strating methods  of  work,  it  would  seem  advantageous  to  call 
upon  the  Icacher-^  who  are  doing  superior  work  to  demon- 
strate to  their  colleagues  by  actually  teaching  their  classes 


under  observation.  Such  a  demonstration  lesson  followed  by 
discussion  of  the  methods  employed  offers  one  of  the  best 
means  avaliable  for  improving  teachers  in  service.  We  ven- 
ture to  suggest  that  exercises  of  this  sort  more  certainly  mod- 
ify the  practice  of  the  teachers  than  to  discussions  or  reading 
of  pedagogical  literature  without  relation  to  genuine  class 
room  situations. 

The  courses  of  study  are  constantly  in  process  of  being- 
revised  or  remade  We  believe  that  the  co-operation  of  the 
teachers  in  the  making  of  the  coures  of  study  offers  another 
valuable  means  ot  bringing  about  that  continued  professional 
growth,  which  is  so  essential  to  the  developing  of  the  suc- 
cessful teacher.  It  might  be  wise  to  allow  the  teachers  to  form 
themselves  into  voluntary  groups  according  to  their  prefer- 
ence, and  to  have  each  of  these  groups  consider  the  problem  of 
modifying  the  coarse  in  the  light  of  their  experience  in  the 
Boise  school  system. 

THE  TEACHING  STAFF. 

The  most  evident  source  of  strength  of  a  school  system  is 
the  standard  of  qualification  maintained  for  the  teaching  and 
supervisory  staff.  To  be  eligible  for  appomtment  to  a  posi- 
tion in  the  elementary  schools,  under  the  existing  regulations 
of  the  Board  of  Education,  a  teacher  must  have  completed 
a  four-yea»r  course  of  study  in  high  school ;  must  be  a  graduate 
of  a  standard  (»wo-year)  normal  school;  and  in  addition, 
must  have  had  ?t  least  two  years  of  successful  experience 
in  a  school  system  of  recognized  standing.  Eligibility  for  ap- 
pointment in  the  high  school  is  based  upon  college  or  uni- 
'versity  graduation  and  two  years  of  approved  teaching  ex- 
perience. 

We  find  upon  examination  that  both  the  letter  and  the 
spirit  of  these  conditions  for  appointment  are  observed.  No 
teacher  is  selected  without  having  had  the  required  mini- 
mum of  education,  training  and  experience.  Usually  those 
appointed  have  j-dditional  qualifications;  for  example,  one- 
quarter  of  the  present  elementary  school  teachers  are  gradu- 
ates of  some  one  cf  the  leading  American  universities. 

Besides  the  distinctly  high  standard  of  qualifications  nec- 
essary for  appointment,  other  influences  have  contributed  to- 
ward the  effectiveness  of  the  teaching  staff.  Among  others 
may  be  noted  the  following : 


8 

Salaries:  The  schedule  of  salaries  for  teachers  in  ele- 
mentary schools  is  applied  without  respect  to  the  grade  of 
which  the  teacher  has  charge.  The  initial  annual  salary  is 
$780,  with  three  increments  of  $60,  to  a  maximum  of  $960. 
Increase  of  salary  is  based  entirely  upon  quality  of  service 
as  estimated  by  -he  Superintendent  of  Schools  and  the  sev- 
eral supervisors. 

It  is  a  noteworthy  fact  that  two-thirds  (52)  of  the  total 
number  of  elementary  school  teachers  (78)  are  now  receiving 
an  annual  salary  of  $900  or  more.  This  is  exclusive  of  the 
principals  (8),  all  of  whom  receive  more  than  the  maximum 
salary.  This  is,  v/hen  compared  with  other  cities  of  the  coun- 
try, a  most  commendable  shov/ing.  In  fact,  in  this  particular 
respect  Boise  stands  near  the  head  of  the  list  of  cities  of  its 
population  Nevertheless,  it  must  be  borne  in  mmd  that  the 
Boise  schools  must  compete  for  competent  and  experienced 
teachers  with  such  cities  as  Salt  Lake  City,  which  has  a  max- 
imum salary  of  $1020,  for  elementary  teachers;  Butte,  with  a 
maximum  of  $1050,  and  Spokane,  with  a  maximum  of 
$1000.  In  education,  as  in  all  other  branches  of  the  public 
service,  the  standard  of  service  is  largely  conditioned  by  the 
standard  of  compensation.  The  community  receives  no  more 
than  it  pays  for. 

Selection :  The  established  practice  of  the  Board  of  Educa- 
tion in  givmg  to  ihe  Superintendent  of  Schools  complete  con- 
trol over  the  nominations,  assignments  and  promotion  of  teach- 
ers represents  an  enlightened  and  progressive  policy  of  school 
administration.  This  has  resulted  in  a  marked  permanency 
of  tenure.  The  t^^aching  force  is  not  subjected  to  the  disturb- 
ing uncertainties  of  annual  re-election.  Even  though  appar- 
ently twenty  per  cent  of  the  total  number  of  teachers  must  be 
replaced  each  yea?  on  account  of  resignations,  a  careful  analy- 
sis of  these  resignations  for  the  past  year  indicates  that  they 
are  due  to  causes  ever  which  the  school  authorities  may  not  ex- 
pect to  exercise  any  control. 

The  present  policy  of  the  Superintendent  of  Schools  in 
encouraging  teachers  to  take  leaves  of  absence  for  the  pur- 
pose of  further  professional  study  cannot  but  be  of  great 
ultimate  benefit  to  the  schools  of  the  city.  At  the  present 
time  six  teachers  are  on  leavei  of  absence  attending  higher 
professional  scho  )ls  for  teachers.  It  is  anticipated  that  each 
will  return  to  Boi:.e  at  the  conclusion  of  the  period  of  leave. 


While  we  are  tonfident  that  every  effort  is  being  made  to 
maintain  the  entire  teaching  .staff  on  a  high  level  of  efficiency, 
and  that  the  Board  of  Education  and  the  Superintendent  of 
Schools  are  utilizing  every  means  to  raise  this  level,  we  sug- 
gest the  institution  of  a  more  systematic  record  of  teachers 
as  to  training,  exjierience,  promotion  and  performance.  Under 
the  existing-  pract.ces,  the  control  and  supervision  of  the  teach- 
ing staff  is  effective  because  it  is  in  the  hands  of  competent 
and  far-sighted  ii  dividuals.  The  community  and  the  teaching 
staff  should  have  some  guarantee  that  changes  in  the  admin- 
istrative and  supervisory  direction  of  the  school  system  will 
not  result  in  any  injustice  to  individuals  or  breaks  in  the 
present  established  policy.  A  record  more  complete  than  the 
present  formal  contract  is  needed  to  satisfy  this  suggestion. 

CLASSIFICATION  AND  PROGRESS  OF  CHILDREN 
THROUGH  THE  SCHOOL  SYSTEM. 

One  of  the  most  satisfactory  tests  of  the  efficiency  of  the 
direction  of  a  school  system  is  found  in  the  provision  made 
for  the  proper  classification  of  children  and  for  their  progress 
through  the  schcols  The  investigations  which  have  been 
made  in  recent  years  with  respect  to  the  amount  of  retardation 
of  children  in  our  public  school  systems  have  led  to  great  em- 
phasis upon  this  aspect  of  school  administration.  It  is  inter- 
esting in  this  connection  to  compare  the  situation  in  the  coun- 
try at  large  with  rht  facts  for  the  Boise  school  system,  and  to 
indicate  briefly  the  progress  that  has  been  made  in  Boise 
during  the  past  three  years. 

In  an  investigation  of  318  cities  in  the  United  States  it 
was  discovered  tliat  one-half  of  the  cities  had  more  than  36 
per  cent  of  their  children  over  age  for  the  grade  in  which  they 
were  found.  Children  were  called  over  age  if  they  were  above 
eight  years  old  in  the  first  grade ;  above  nine  years  old  in  the 
second  grade;  above  10  years  old  in  the  third  grade,  and  so  on. 
In  the  city  of  Bc^e  during  the  current  year  only  27  per  cent 
of  the  children  ar j  over  age  for  their  grades.  Two  years  ago 
46  per  cent  of  the  children  were  over  age;  one  year  ago 
39  per  cent  of  the  children  were  too  old  for  their  grade.  There 
is  a  very  definite  indication  here  of  a  most  successful  handling 
of  the  problem  of  proper  classification  of  children. 

For  the  whole  United  States  one-half  of  the  cities  have 


10 

less  than  4.5  per  cent  of  their  children  under  age  for  their 
grade,  that  is,  under  seven  years  of  age  in  the  first  grade, 
under  seven  years  in  the  second  grade,  under  eight  years  in 
the  third  grade,  and  so  on.  In  the  Boise  school  system  two 
years  ago,  five  per  cent  of  the  total  number  of  children  en- 
rolled were  under  age  for  their  grade.  Last  year  this  group 
had  been  increased  to  8.2  per  cent,  and  during  the  current 
year  amounts  to  10.7  per  cent  of  the  total  number  of  children 
enrolled.  This  places  Boise  among  the  best  cities  in  the 
United  States  from  the  standpoint  of  allowing  children  ot 
unusual  ability  to  advance  rapidly. 

Further  evidence  along  the  same  line  is  found  in  the  fact 
that  during  the  past  year  there  were  200  double  promotions 
in  the  Boise  school  system.  That  is,  there  were  200  children 
who,  because  of  their  superior  ability,  have  saved  a  half  year 
in  their  school  careers.  It  is  interesting  to  note  that  while 
the  majority  of  these  double  promotions  are  found  in  the 
lower  grades,  it  is  still  not  unusual  or  impossible  for  children 
in  the  upper  grades  to  make  rapid  progress. 

Another  measure  of  the  efficiency  of  a  system  of  schools 
is  found  in  the  extent  to  which  children  are  retained  through 
the  seveial  grade^.  The  elimination  of  children  from  schools 
becomes  large  enough  to  merit  careful  attention  in  the  fifth 
grade.  For  the  318  cities  for  which  the  figures  are  available 
one-half  of  the  cilies  have  more  than  20  per  cent  of  their  chil- 
dren eliminated  by  the  time  the  fifth  grade  is  reached.  Boise 
has  only  seven  pc*  cent  eliminated  at  this  stage  of  their  school 
career.  Oi.e-half  of  the  cities  of  the  United  States  have  more 
than  35  per  cent  of  their  children  elimmated  by  the  time  the 
sixth  grade  is  reached,  50  per  cent  by  the  time  the  seventh 
grade  is  reached,  and  60  per  cent  before  the  eighth  grade.  The 
city  of  Boise  eliminates  only  12  per  cent  by  the  time  they  have 
reached  the  sixth  grade,  19  per  cent  before  the  seventh  grade 
and  25  per  cent  before  the  eighth  grade. 

The  figures  for  the  high  school  are  quite  as  striking  and 
argue  as  favorably  for  the  Boise  school  system.  For  the 
whole  of  the  United  States  one-half  of  the  cities  show  65  per 
cent  of  their  children  eliminated  by  the  time  the  high  school 
is  reached.  The  Boise  school  system  has  eliminated  only  35 
per  cent  of  their  children  at  this  stage  of  their  school  careers. 
At  the  end  of  the  high  school  course  one-half  of  the  cities 
of  the  United  States  show  14  per  cent  or  less  of  the  children 


11 

who  entered  school  still  in  attendance.  In  Boise  28  per  cent 
of  the  children  who  entered  the  first  grade  are  found  in  the 
last  year  of  the  high  school.  This  is  a  most  unusual  reten- 
tion of  children  in  the  schools. 

In  considering  the  problem  of  elimination  by  grades,  we 
are  concerned  with  the  amount  of  education  which  children  in 
a  school  system  receive.  Another  method  of  treating  the  prob- 
lem which  has  been  under  discussion  throughout  this  section 
is  to  ask  at  what  age  children  leave  schools.  In  most  school 
systems  children  between  12  and  14  years  of  age  begin  to  be 
eliminated  on  account  of  inability  to  do  the  work  required  ot 
them  in  school  or  because  of  special  provisions  in  the  com- 
pulsory education  law,  which  allow  them  to  be  employed. 
After  14  years  of  age  the  amount  of  elimination  increases  very 
rapidly.  In  Boise  there  is  practically  no  elimination  of  chil- 
dren until  after  the  14th  year  has  been  reached.  The  15th  year 
group  shows  21  per  cent  eliminated,  the  16th  year  group  shows 
29  per  cent  eliminated,  and  the  17th  year  group  60  per  cent 
eliminated. 

Because  of  the  provision  for  rapid  progress  in  the  Boise 
school  system  some  of  those  who  are  eliminated  at  17  years 
of  age  have  disappeared  because  of  graduation  from  the  high 
school.  The  record  of  elimination  by  ages  is  again  most  cred- 
itable for  Boise,  placing  it  among  the  cities  of  the  United 
States  which  retain  children  the  longest. 

In  connection  with  the  problem  of  classification  and  prog- 
ress of  children  through  the  grades  two  recommendations  oc- 
cur to  us  which  may,  we  believe,  be  followed  to  advantage  by 
the  school  system.  • 

First,  for  the  notably  slow  or  backward  children  special 
classes  should  be  provided.  The  boy  or  girl  who  is  mentally 
not  capable  of  mciking  the  progress  made  by  the  normal  chil- 
dren is  not  usually  happy  in  his  associations  with  them,  and 
his  presence  in  the  class  room  is  a  distinct  handicap  to  the 
teacher.  The  be^t  practice  in  the  United  States  today  pro- 
vides special  classes  for  children  who  are  by  virtue  of  their 
lack  of  capacity  three  or  more  years  over  age.  We  believo 
that  two  or  three  teachers  specially  trained  to  give  instruction 
to  backward  children  should  be  employed.  There  should  be  a 
specially  arranged  curriculum  for  these  classes.  Probably 
more  work  in  the  manual  and  household  arts  should  be  pro- 
vided for  these  children  than  is  common  in  the  regular  classes. 


12 

It  is  timely  to  note  in  this  connection  that  a  beginning  of 
work  of  this  sort  has  already  been  made  in  Boise  by  sending 
some  of  the  backward  boys  to  the  high  school  manual  train- 
ing department  for  special  instruction  one  hour  a  day. 

Our  second  recommendation  has  to  do  with  a  system  of 
cumulative  records  of  pupils.  Any  adequate  study  of  the 
problems  of  classification  and  progress  of  children  in  public 
schools  requires  :i  record  which  traces  each  child  from  the 
time  he  enters  the  system  until  the  time  he  leaves  it.  Cards 
which  carry  cumulative  records  will  give  for  any  child  in  the 
school  system  a  history  of  his  school  career,  including  the  date 
of  birth,  parentas^e,  age  at  which  he  entered  school,  the  num- 
ber of  days  of  attendance  for  each  year,  the  date  of  each  pro- 
motion, his  transfer  from  one  school  to  another,  his  scholar- 
ship for  each  grade  through  which  he  has  passed,  his  general 
physical  condition  and  his  deportment.  If  schools  are  to  do 
the  most  for  each  boy  or  girl  found  in  them,  it  is  necessary 
always  to  consider  the  present  condition  of  these  pupils  in 
terms  of  their  pas^  history.  It  is  only  by  keeping  cumulative 
record  such  as  has  been  suggested  that  it  is  ever  feasible  to 
give  such  adequate  consideration  to  the  problems  of  individual 
pupils  as  is  demanded  by  the  best  educational  practice.  These 
cumulative  record  cards  for  each  pupil  can  be  kept  by  the 
teacher  with  but  \ery  little  additional  labor  and  can  be  trans- 
ferred to  permanent  records,  kept  in  the  superintendent's 
office,  for  a  city  ihe  size  of  Boise  by  making  available  approx- 
imately one-fourth  of  the  time  of  a  clerk. 

PARKS  AND  PLAYGROUNDS. 

The  committee  visited  the  forty  acres  which  are  being  de- 
veloped into  a  school  park.  They  found  the  plans  for  ample 
playgrounds  well  advanced  toward  realization  and  the  plans 
for  an  auditorium  and  outdoor  gymnasium  projected. 

This  enterprise  cannot  be  too  highly  commended.  The  use 
of  outdoor  exercises  is  beneficial  to  pupils  and  teachers  as  a 
regular  part  of  the  school  program.  The  creation  of  habits 
of  systematic,  healthful  recreation  is  as  important  to  the  in- 
dividual ds  Any  phnse  of  his  eaucation.  Frcni  the  point  of 
view  of  public  economy  it  is  distinctly  advantageous  to  or- 
ganize the  park  as  a  part  of  the  public  school  system  for  it 
gives  to  the  pupilb  large  opportunity  for  organized  outdoor 
exercises  and  it  insures  the  development  of  sport  under  com- 


13 

petent  supervision  The  disadvantages  of  duplication  which 
would  arise  if  schools  and  playground  were  separate  is  a  most 
impressive  example  of  educational  foresight.  Boards  of  Edu- 
cation have  in  general  failed  to  initiate  movements  of  this 
type.  The  establ'bhment  of  a  play  park  is  therefore  a  feature 
of  the  Boise  system  which  stands  out  as  unique.  In  the  opin- 
ion of  your  committee  the  Board  of  Education  has  not  only 
rendered  a  service  to  the  city  of  Boise,  but  has  offered  an 
example  to  other  cities  which  is  sure  to  be  imitated.  This, 
like  other  units  of  the  general  school  equipment,  offers  large 
possibilities  of  service  to  the  older  members  of  the  commun- 
ity. There  is  every  reason  to  look  forward  to  a  general  de- 
velopment of  legitimate  recreation  in  the  whole  community 
through  the  use  of  this  play  park. 

THE  SCHOOL  PLANT. 

The  committee,  after  a  personal  inspection  is  agreed  that 
the  school  plant  is  in  a  highly  satisfactory  condition.  The  con- 
tsruction  of  new  buildings,  the  repair  of  old  buildings  and 
the  care  of  all  school  buildings  is  under  the  immediate  charge 
of  a  superintendent  of  buildings.  To  this  superintendent  of 
buildings,  the  janitors  are  immediately  responsible.  All  of  the 
school  buildings  appear  to  be  in  charge  of  competent  janitors 
and  caretakers. 

On  every  hand,  there  is  evidence  of  the  desire  and  readiness 
of  the  school  administration  to  provide  the  best  and  most 
economical  buildings  and  equipment.  Special  care  has  beeji 
given  to  the  lighting,  ventilation  and  heating  of  all  buildings. 
In  several  of  the  older  buildings,  modern  ventilating  appliances 
have  been  installed.  At  the  present  time  75  per  cent  of  all 
class  rooms  are  heated  and  ventilated  according  to  moder,n 
hygienic  standards 

We  note  with  commendation  the  fact  that  class  rooms  in 
elementary  schools  do  not  ordinarily  contain  more  than  40 
seats,  thus  providing  a  guarantee  against  the  overcrowding  of 
these  schools. 

In  every  instance  special  care  appears  to  have  been  exercised 
in  selecting  sites  for  new  school  buildings,  so  as  to  provide 
proper  neighborhood  surroundings  as  well  as  suitable  play- 
ground spaces.  We  desire,  especially,  to  mention  with  approval 
the  present  practice  of  the  Board  of  Education  in  acquiring 


14 

sites  foi  school  buildings  in  anticipation  of  the  tuture  growth 
of  the  school  system  and  of  the  city. 

EXPENDITURES. 

Every  citizen  of  a  community  is  vitally  concerned  with  the 
expenditures  for  public  schools.  In  this  examination  of  the 
Boise  school  system  the  committee  has  utilized  statistics  pub- 
lished by  the  Unhed  States  Bureau  of  Education  for  37  cities. 
The  cities  selected  were  taken  from  among  the  90  which,  in 
common  with  Boise,  have  adopted  a  system  of  accounts  which 
enabled  them  to  report  their  fiscal  statistics  in  the  form  recom- 
mended by  the  committee  of  the  National  Educational  Asso- 
ciation on  Uniforrii  Records  and  Reports.  In  part  they  are 
cities  which  are  comparable  in  size;  in  part  they  are  in  the 
same  geographic  region;  in  part  they  were  selected  becattse 
of  recognized  exrcllence  of  school  organization  and  adminis- 
tration. Boise  was  one  of  the  first  cities  to  introduce  a  sys- 
tem of  accounts  which  made  possible  the  adequate  distriDutioa 
of  expenditures  among  the  several  items  of  the  school  budget 
in  conformity  with  the  recommendations  of  the  committee 
above  referred  to. 

The  tables  whi'^h  follow  compare  the  cost  per  pupil  of  ele- 
mentary and  of  high  school  education  among  the  several  cities ; 
show  the  percentage  of  the  total  cost  which  is  to  be  charged  to 
elementary  schools  and  to  high  schools;  the  percentage  of  the 
total  cost  chargeable  to  instruction,  to  maintenance  and  to  cost 
of  operation  of  j  chool  plant,  and  the  percentage  of  the  total 
average  daily  attendance  enrolled  in  elementary  and  in  high 
•schools.  In  all  of  these  comparisons,  there  is  included  in  the 
column  called  total  cost,  the  expenses  of  general  control,  the 
cost  of  instruction  in  day  elementary  and  high  schools,  the 
cost  of  operating  and  maintaining  the  plant  for  these  schools. 
Under  general  control  are  included  salaries  and  other  expenses 
of  the  Board  of  Education  and  secretary's  office,  the  expenses, 
of  school  elections  and  school  census,  the  expenditures  for 
financial  offices  and  accounts,  for  legal  services,  for  opera- 
tion and  maintenance  of  school  offices,  for  officers  in  charge 
of  buildings  and  supplies,  for  the  office  of  Superintendent  of 
Schools,  and  for  the  enforcement  of  compulsory  education  and 
truancy  laws.  The  amount  charged  to  instruction  includes 
the  salaries  of  supervisors  of  grades  and  subjects,  the  salaries 
of  principals  and  their  clerks,  the  salaries  of  teachers,  and 


15 

expenditures  for  text  books  and  for  stationery  and  supplies. 
Under  the  operation  of  plant  are  included  the  expenditures 
for  wages  of  janitors  and  other  employes,  for  fuel,  for  water, 
for  light  and  power  and  for  janitors'  supplies.  Maintenance 
of  plant  includes  expenditures  for  repairs  of  buildings  and  up- 
keep of  grounds,  for  repair  and  replacement  of  equipment 
and  for  insurance. 

It  will  be  seen  by  this  analysis  of  the  items  which  are  used  in 
our  comparison,  that  only  current  expjenditures  are  considered. 
We  believe  that  any  comparison  of  the  expenditures  of  school 
systems  must  be  made  upon  this  basis,  since  the  practice  with 
regard  to  handling  capital  outlay  varies  so  great  among  cities, 
that  any  comparison  of  these  expenditures  is  practically  im- 
possible. 

TABLE  I. 

COST  OF  ELEMENTARY  EDUCATION  PER   PUPIL  IN 
AVERAGE  DAILY  ATTENDANCE. 

1.  New   Rochelle,   N.  Y $  49.59 

2.  Clinton.    Iowa 48.47 

3.  Seattle,   Wash 43.92 

4.  Oakland,  Cal 43.64 

5.  San  Francisco,  Cal 42.27 

6.  Newton,  Mass , 41.41 

7.  Spokane,  Wash 41.05 

8.  East  Orange,   N.  J 40.54 

9.  BOISE,  IDAHO 39.92 

10.  Fresno,  Cal 39.32 

11.  Berkeley,  Cal 39.29 

12.  Salt  Lake  City,  Utah    38.24 

13.  Pittsburg,  Pa 37.80 

14.  Troy,    N.    Y 37.40 

15.  Springfield,  111 , 37.19 

16.  Tacoma,  Wash 36.22 

17.  San  Diego,  Cal 35.44 

18.  Newark,  N.  J 35.33 

19.  Denver,    Colo 35.04 

20.  Quincy,  Mass 34.57 

21.  Holyoke,  Mass 34.55 

22.  Dayton,  Ohio 33.54 

23.  Evansville.   Ind 33.38 

24.  East    St.    Louis,   111 33.16 

25.  Detroit,  Mich 32.05 

26.  Sioux    City,    Iowa    31.62 

27.  Ithaca,  N.  Y 29.65 

28.  Cambridge,  Mass 29.23 

29.  Baltimore,   Md 28.42 

30.  Everett,   Mass 28.06 

31.  Battle  Creek,   Mich. 27.97 

32.  Lynn,  Mass 27.77 

33.  Decatur,  111 25.93 


16 


34.  Muskegon,  Mich 25.65 

35.  Louisville,   Ky .: 24.55 

36.  Quincy,  Mass 24.24 

37.  New  Britain,  Conn ' 23.15 


TABLE  II. 

COST   OP   SECONDARY   EDUCATION   PER   PUPIL   IN 
AVERAGE  DAILY  ATTENDANCE. 

1.  Seattle,  Wash $101.04 

2.  Pittsburg,  Pa 98.18 

3.  Evansville,    Ind     92.78 

4.  San  Diego,  Cal 91.15 

5.  Newark,    N.    J 89.50 

6.  Dayton,  Ohio   86.67 

7.  New  Rochelle,   N.   Y 86.56 

8.  Louisville,   Ky 82.90 

9.  Spokane,  Wash 82.37 

10.  East    St.    Louis,    111 82.28 

11.  Newton,  Mass 80.84 

12.  Troy,   N.   Y 80.82 

13.  Cambridge,   Mass 79.93 

14.  Fresno,    Cal , 79.23 

15.  San  Francisco,   Cal 78.24 

16.  Oakland,    Cal 77.40 

17.  Detroit,   Mich 77.30 

18.  Baltimore,   Md 75.50 

19.  BOISE,    IDAHO    74.19 

20.  Denver,    Colo •  • 72.93 

21.  East   Orange,    N.   J 72.41 

22.  Holyoke,  Mass 70.67 

23.  Salt  Lake   City,  Utah    69.80 

24.  Tacoma,  Wash 67.87 

25.  Berkeley,  Cal  65.42 

26.  Clinton,  Iowa 63.32 

27.  Quincy,  111 63.14 

28.  Springfield,  111 61.43 

29.  Lynn,  Mass 59.23 

30.  Battle  Creek,  Mich 54.00 

31.  Muskegon,  Mich 53.03 

32.  Everett,  Mass 53.00 

33.  New  Britain,   Conn 52.84 

34.  Quincy,  Mass •.  45.73 

35.  Decatur,  111 45.00 

36.  Sioux  City,  Iowa   44.51 

37.  Ithaca,  N.  Y 40.16 

Tables  1  and  2  show  the  relative  cost  of  elementary  educa- 
tion and  of  high  school  education  in  Boise,  as  compared  with 
the  other  cities  considered.  It  will  be  discovered  that  Boise 
ranks  fairly  high  in  the  cost  of  elementary  education.  This 
is  due  in  part  to  tne  qualifications  demanded  of  teachers.  It  is 
also  accounted  for  by  the  fact  that  the  size  of  classes  in  Boise 
is  smaller  +han  in  some  of  the  other  cities.     It  is  our  belief 


17 

that  these  classes  should  be  made  still  smaller  rather  than 
larger.  The  cost  of  elementary  education  is  also  increased  by 
the  richness  of  the  program  of  instruction,  the  variety  of  ac- 
tivities provided  for  children  in  these  schools.  It  seems  to 
us  uhwise  to  curtail  any  of  the  activities  now  provided  in  the 
Boise  elementary  schools  in  order  to  reduce  the  cost. 

The  cost  of  high  school  education  in  Boise  is  exceeded  in 
half  of  the  cities  for  which  we  have  data.  When  one  consid- 
ers the  great  variety  of  courses  offered  in  the  Boise  high  school 
he  is  forced  to  believe  that  the  cost  has  been  kept  as  low  as  it 
has  only  by  the  most  careful  management. 

Another  comparison  among  the  several  cities  is  found  in  the 
percentage  of  the  total  expenditure  devoted  to  high  schools 
and  to  elementary  schools.  Any  such  comparison  must,  of 
course,  be  checked  by  inquiring  concerning  the  percentage  of 
the  total  average  daily  attendance  to  be  fouiid  in  each  of  these 
parts  of  the  school  system. 

TABLE  III. 

THE  PERCENTAGE  OF  THE  TOTAL  AMOUNT  EXPENDED 

FOR  PUBLIC  EDUCATION  DEVOTED   TO 

ELEMENTARY  SCHOOLS. 

1.  Newark,  N.  J 90% 

2.  San  Francisco,  Cal 87 

3.  Pittsburg,  Pa 87 

4.  East  St.  Louis,  111 85 

5.  Salt  Lake  City,  Utah   85 

6.  Clinton,  Iowa   85 

7.  Sioux  City,  Iowa '. 84 

8.  Baltimore,   Md 84 

9.  Troy,  N.  Y 82 

10.  New  Rochelle,  N.  Y 82 

11.  Springfield,   111 81 

12.  Decatur,   111 •  • 81 

13.  Everett,  Mass 81 

14.  New  Britain,  Conn 80 

15.  Holyoke,   Mass 79 

16.  East    Orange,    N.    J 79 

17.  Oakland,  Cal 79 

18.  Detroit,  Mich 79 

19.  Qulncy,  Mass 79 

20.  Quincy,  111 79 

21.  Lynn,  Mass 78 

22.  Denver,  Colo 78 

23.  Fresno,  Cal 78 

24.  Tacoma,  Wash 77 

25.  Evansville,  Ind 77 

26.  Spokane,   Wash 77 

27.  Cambridge,  Mass 76 

28.  Dayton,   Ohio    76 

29.  Battle  Creek,  Mich 75 


18 


30.  L9^isville,  Ky 71 

31.  Muskegon,  Mich 70 

32.  Seattle,  Wash '....••...   70 

33.  BOISE,  IDAHO  ••....   69 

34.  Berkeley,  Cal -.   68 

35.  San   Diego,   Cal 68 

36.  Ithaca,  N.   Y 64  ' 

37.  Newton,  Mass 64 

TABLE  IV. 

THE  PERCENTAGE  OF  THE  TOTAL  AMOUNT    EXPENDED 
FOR    PUBLIC    EDUCATION    WHICH    IS    DEVOTEfD 
TO   THE  HIGH  SCHOOL. 

1.  Ithaca,  N.  Y 36  % 

2.  Newton,  Mass 36 

3.  San  Diego,  Cal 32 

4.  Berkeley,    Cal     32 

5.  BOISE,    IDAHO    ...•• 31 

6.  Seattle,  Wash 30 

7.  Muskegon,    Mich 30 

8.  Louisville,  Ky 29 

9.  Battle  Creek,  Mich 25 

10.  Cambridge,  Mass 24 

H.  Dayton,   Ohio    •  • 24 

12.  Tacoma,  Wash. 23 

13.  Spokane,   Wash 23 

14.  Evansville,    Ind 23 

15.  Lynn,   Mass 22 

16.  Denver,  Colo : . . .   22 

17.  Fresno,   Cal 22 

18.  Detroit,    Mich 21 

19.  Oakland,  Cal 21 

20.  East  Orange,  N.  J 21 

21.  Holyoke,   Mass 21 

22.  Quincy,   111 21 

23.  Quincy,    Mass 21 

24.  Decatur,   111 19 

25.  New   Britain,    Conn 20 

26.  Springfield,   111 19 

27.  Everett,  Mass 19 

28.  New  Rochelle,  N.  Y 18 

29.  Troy,  N.  Y 18 

30.  Sioux   City,   Iowa    16 

31.  Baltimore,  Md 16 

32.  Salt  Lake  City,  Utah   15 

33.  Clinton,  Iowa   15 

34.  East  St.  Louis,  111,   15 

35.  Pittsburg,  Pa 13 

35.  San  Francisco,  Cal 13 

37.  Newark,    N.    J 10 


19 

TABLE  V. 

THE    PERCENTAGE   OF   THE    TOTAL   NUMBER   OF   CHIL- 
DREN IN  AVERAGE  DAILY  ATTENDANCE  TO  BE 
FOUND  IN  HIGH  SCHOOL  AND  IN  ELE- 

Elementary 
High  School.  Schools. 

1.  Ithaca,  N.  Y s...   30  %  70  % 

2.  Newton,  Mass 22  78 

3.  Berkeley.   Cal    22  78 

4.  BOISE,  IDAHO   19  81 

5.  Muskegon,  Mich 18  82 

6.  San   Diego,    Cal 16  84 

7.  Seattle,   Wash    15  85 

8.  Battle  Creek,  Mich 15  85 

9.  East  Orange,  N.  J 14  86 

10.  Spokane,  Wash 14  86 

11.  Tacoma,    Wash 14  86 

12.  Quincy,  Mass 13  87 

13.  Quincy,  111 13  87 

14.  Oakland,  Cal 13  87 

15.  Holyoke,   Mass 12  88 

16.  Lynn,    Mass 12  88 

17.  Sioux  City,  Iowa 12  88 

18.  Fresno,    Cal 12  88 

19.  Springfield,   111 12  88 

20.  Denver,  Colo 12  88 

21.  Louisville,  Ky 11  89 

22.  Everett,  Mass 11  89 

23.  Decatur,  111 11  89 

24.  Dayton,   Ohio    11  89 

25.  Evansville,  Ind 10  90 

26.  Detroit,  Mich 10  90 

27.  Cambridge,    Mass 10  90 

28.  New  Rochelle,  N.  Y 10  90 

29.  New  Britain,  Conn 10  90 

30.  Clinton,    Iowa    10  90 

31.  Salt  Lake  City,  Utah 9  91 

32.  Troy,    N.    Y 9  91 

33.  San  Francisco,  Cal 8  92 

34.  Baltimore,    Md 7  93 

35.  East  St.  Louis,  111 7  93 

36.  Pittsburg,  Pa 6  94 

37.  Newark,  N.  J    5  95 

The  tables  given  above  show  clearly  that  Boise  devotes  a 
relatively  large  proportion  of  all  the  money  spent  for  educa- 
tion to  the  high  school  (Table  4).  It  is  noticeable  also  that 
a  very  large  percentage  of  the  total  number  of  children  in 
the  school  system  are  enrolled  in  the  high  school.  Indeed, 
the  cities  which  rank  above  Boise  in  the  percentage  of  children 
in  high  schools  h.ive  this  large  percentage  by  virtue  of  special 
local  conditions  In  Ithaca,  many  boys  are  sent  to 
the  high  school  from  other  localities  in  order  to 
prepare      tliem      for      Cornell      University;      and      many 


20 

families  move  to  Ithaca,  when  their  children  are  of  high 
school  age,  in  order  to  secure  this  university  preparation.  The 
facts  stated  for  Ithaca  will  hold  for  Berkeley,  which  is  the 
seat  of  the  University  of  California.  Newton,  Mass.,  which 
is  the  only  other  city  that  ranks  above  Boise  in  the  percentage 
of  the  children  to  be  found  in  the  high  school,  is  a  suburb 
of  Boston,  inhabited  almost  exclusively  by  well-to-do  fam- 
ilies by  whom  a  high  school  education  is  considered  essential. 
A  comparison  of  the  cost  of  instruction  and  of  the  cost  ot 
maintenance  and  operation  of  the  plant  to  the  total  cost  of 
education  shows  ihe  relative  emphasis  placed  by  the  Boise  sys- 
tem on  the  different  phaess  of  school  activity. 

TABLE  VI. 

THE  PERCENTAGE  OF  THE  TOTAL  EXPENDITURE  FOR 
PUBLIC  EDUCATION  DEVOTED  TO  INSTRUCTION. 

1.  Fresno,  Cal 91  % 

2.  ;:::fierkeley,    Cal 87  -^ 

3.  Newark,    N.    J 86 

4.  Spokane,   Wash 86 

5.  Quincy,   Mass 86 . 4 

6.  Oakland,  Cal 86 

7.  '"^an  Francisco,  Cal 86  _ 

8.  BOISE,  IDAHO  ..••..... 85 

9.  Holyoke,  Mass '. 84 

10.  Lynn,  Mass 84 

11.  Tacoma,  Wash 84 

12.  Denver,  Colo 84 

13.  Detroit,  Mich 84 

14.  East  Orange,  N.  J 83 

15.  Evansville,    Ind 83 

16.  Louisville,  Ky 83 

17.  Seattle,  Wash 83 

18.  Baltimore,  Md , 83 

19.  Cambridge,  Mass 82 

20.  Troy,  N.  Y 82 

21.  Muskegon,  Mich 81 

22.  Salt  Lake  City,  Utah 81 

23.  Everett,  Mass •  • 80 

24.  Springfield,   111 7 80 

25.  Ithaca,  N.  Y 80 

26.  New  Britain,  Conn 79 

27.  Decatur,   111 78 

28.  San   Diego,   Cal 78 

29.  Quincy,  111 77 

30.  East  St.  Louis,   111 77 

31.  Newton,  Mass 76 

32.  Pittsburg,  Pa , 7R 

33.  Dayton,  Oh^o 74 

34.  Battle  Creek,  Mich 74 

35.  Sioux  City,  Iowa 74 

36.  Clinton,  Iowa 73 

37.  New  Rochelle,  N.  Y 71 


21 


TABLE  VII. 

THE   PERCENTAGE   OF  THE   TOTAL  EXPENDITURE   FOR 
PUBLIC  EDUCATION  DEVOTED  TO  MAINTENANCE. 

1.  New  Rochelle,  N.  Y 14  % 

2.  Newton,    Mass 12 

3.  San  Diego,  Cal 12 

4.  Clinton,  Iowa 12 

5.  Dayton,  Ohio 10 

6.  Springfield,   111 10 

7.  Quincy,  111 9 

8.  Sioux  City,  Iowa 9 

9.  Battle   Creek,    Mich 9 

10.  Salt  Lake  City,   Utah    9 

11.  New  Britain,  Conn 8 

12.  Muskegon,  Mich 7 

13.  Ithaca,  N.  Y 7 

14.  San  Francisco,  Cal 7 

15.  Louisville,  Ky 7 

16.  Baltimore,  Md 7 

17.  Pittsburg,   Pa 7 

18.  East  St.   Louis,   111 7 

19.  Denver,  Colo 6 

20.  ■  Decatur,  111   6 

21.  Seattle,  Wash 6 

22.  Newark,   N.  J 5 

23.  Evansville,  Ind 5 

24.  Everett,  Mass 5 

25.  East    Orange,    N.    J 5 

26.  Tacoma,  Wash 5 

27.  Oakland,    Cal 5 

28.  Cambridge,  Mass 5 

29.  BOISE,  IDAHO   . . .  •  • 4 

30.  Lynn,  Mass 4 

•31.     Detroit,    Mich 4 

32.  Troy,  N.  Y 3 

33.  Fresno,  Cal 2 

34.  Berkeley,  Cal 2 

35.  Spokane,  Wash 2 

36.  Holyoke,   Mass 7 

37.  Quincy,  Mass 6 

TABLE  VIIL 

THE  PERCENTAGE  OF  THE  TOTAL  EXPENDITURE  FOR 
PUBLIC  EDUCATION  DEVOTED  TO  OPERATION. 

1.  Pittsburg,  Pa 11% 

2.  Battle   Craak,   Mich-.    17 

3.  Sioux  City,   Iowa    17 

4.  Decatur,   111 16 

5.  Dayton,  Ohio 16 

6.  East  St.  Louis,  111 16 

7.  Holyoke,   Mass 15.3 

8.  New  Rochelle,  N.  Y 15 

9.  Troy,  N.  Y 15 

10.  Clinton,  Iowa 15 

11.  Everett,  Mass 15 

12.  Quincy,    111 14 


22 

13.  New  Britain,  Conn 13 

14.  Berkeley,  Cal . .  12 

15.  Quincy,  Mass 13 

16.  Ithaca,   N.   Y 13 

17     Cambridge,  Mass 13 

18.  Newton,  Mass 12 

19.  Detroit,    Mich 12 

20.  Muskegon,  Mich 12 

21.  East  Orange,  N.  J. .  12 

22.  Lynn,   Mass     12 

23.  Evansville,  Ind 12 

24.  Berkeley,  Cal •  • 11 

25.  Seattle,  Wash 11 

26.  BOISE,    IDAHO    11 

27.  Tacoma,    Wash 11 

28.  Baltimore,     Md 10 

29.  Louisville,    Ky 10 

30.  Denver,    Colo •  • 10 

31.  Salt  Lake  City,  Utah   10 

32.  Springfield,    111 10 

33.  San    Diego,    Cal 10 

34.  Newark,    N.    J 9 

35.  Oakland,    Cal *. ••  .  9 

36.  Fresno,    Cal •  7 

37.  San    Francisco,    Cal 7 

It  will  be  discovered  from  the  tables  given  above  that  Boise 
devotes  a  larger  part  of  the  money  available  for  public  educa- 
tion to  instruction  than  is  common  in  the  cities  considered, 
and  that  a  relatively  smaller  part  of  the  total  than  is  custom- 
ary is  devoted  to  the  maintenance  and  operation  of  the  plant. 
In  our  opinion,  this  emphasis  placed  upon  good  teaching  and 
the  development  of  an  adequate  system  of  supervision  in  the 
Boise  school  system  is  highly  commendable. 

CO-OPERATION    OF    THE    COMMUNITY    WITH 
THE  PUBLIC  SCHOOLS. 

Throughout  the  inquiry,  the  members  of  the  committee  have 
been  impressed  on  every  hand  with  the  intimate  relationship 
that  obtains  between  the  community  and  the  school  system. 
Personal  interviews  with  a  number  of  citizens  and  with  certain 
of  the  largest  taxpayers  has  developed  the  fact  that  the  public 
school  officials  have  secured  the  utmost  confidence  in  their 
efforts  to  develop  the  school  system  to  the  highest  possible 
degree  of  effectiveness.  There  appears  to  be  in  the  community 
nothing  of  that  fear  so  frequently  found  in  American  cities 
that  the  public  schools  are  costing  too  much. 

At  our  request  the  Superintendent  of  Schools  has  furnished 
us  with  a  partial  list  of  items  of  the  more  recent  co-operative 


23 

activities  of  the  community  and  school  system.  We  regard  this 
list  so  significant  of  the  community's  attitude  toward  educa- 
tion that  we  submit  it  herewith  as  one  of  the  evidences  of  the 
progrssive  spirit  that  pervades  the  community  in  its  effort 
to  provide  modern  facilities  of  education  for  its  growing  pop- 
ulation. 

ITEMS    OF    CO-OPERATION    OF    SCHOOL    AND 

COMMUNITY. 

The  Juvenile  Judge,  Judge  Dunbar,  and  the  two  probation 
officers  have  at  all  times  co-operated  with  the  school  in  mak- 
ing the  connection  between  the  school  and  the  home. 

The  city  health  department,  consisting  of  the  city  physician, 
city  nurse  and  city  health  officer,  have  followed  up  all  the 
cases  in  the  homes  referred  to  them  by  the  school  nurse.  They 
have  also  co-operated  with  the  school  nurse  in  matters  of 
quarantine 

The  physicians  and  dentists  of  the  city  have  treated,  free  of 
charge,  all  cases  recommended  by  the  school  nurse. 

Mothers'  clubs  have  aided  the  school  in  furnishing  rest 
rooms,  and  providing  school  gardens. 

The  city  baseball  club  has  furnished  free  to  the  schools  Cody 
Park  for  ail  games  and  outdoor  sports. 

The  merchants  of  the  city  provided  the  High  School  Band 
with  uniforms,  and  the  athletic  association  with  trophies. 

The  Commerc-al  Club  furnished  free  to  the  schools  its 
ownxlub  rooms  for  the  entertainment  of  guests. 

The  Columbian  Club,  the  largest  club  in  the  city,  co-operated 
with  the  schools  in  planting  flowers  and  ornamenting  grounds ; 
and  organizing  the  City  Choral  Society. 

The  Public  Im;jrGvement  Club  encouraged  boys  to  cultivate 
vacant  lots,  to  dig  dandelions,  etc. 

The  Good  Citizenship  Club  gave  prizes  for  home  gardens 
and  grounds. 

The  Knights  of  Columbus  offered  prizes  for  the  best  essay 
on  Columbus. 

The  Commercial  Club  gave  prizes  for  the  best  Booster 
essay. 


The  D.  A.  R.  conducted  a  contest  on  committing  national 
songs,  and  had  a  contest  for  the  best  patriotic  essay. 

The  Y.  M.  C.  A.  officials  conducted  a  grammar  grade 
basket  ball  and  btiseball  league. 

The  Y.  M.  C.  A.  also  recruited  a  night  class  in  manual 
training. 

The  Y.  W.  C.  A  also  recruited  classes  in  gymnasium,  cook- 
ing and  sewing. 

-The  College  Women's  Club  has  offered  a  scholarship  valued 
at  $200  annually  for  the  University  of  Idaho. 

The  University  of  Idaho  Alumni  has  also  offered  a  schol- 
arship valued  at  $150. 

The  Intermouiitain  Fair  Association  has  donated  the  in- 
field of  the  fair  i^rounds,  consisting  of  30  acres,  for  a  dem- 
onstration farm  f  jr  the  high  school*. 

Stock  breeders  furnish  their  stock  and  bring  them  to  the 
school  for  exhibit  and  judging  purposes. 

Implement  deaitis  of  the  city  co-operate  with  the  schools 
in  farm  machinery',  and  send  the  boys  out  to  demonstrate  the 
implements. 

Two  or  three  dairy  herds  have  been  used  for  experimental 
purposes  in  connection  with  the  schools. 

Fruit  growers  have  given  the  boys  a  chance  to  work  in 
their  orchards,  planting  and  spraying,  and  packers  have  prom- 
ised to  take  boys  into  their  packing  establishments  for  prac- 
tical work. 


SPECIAL  REPORT  ON  INSTRUCTION. 

.  (Edward  C.  Elliott.) 

January  7,  1913. 

To  the  Honorable  Board  of  Education,  Independent  School 
District,  Boi?e  Idaho. 

Gentlemen:  In  response  to  your  Superintendent  of  Schools 
I  present  the  following  report  upon  the  class  room  work  of 
teachers  as  observed  during  my  visitation  of  the  schools  on 
January  6th  and  7th,  1913. 

It  was  agreed  by  the  members  of  the  recent  School  Inquiry 


25 

Committee  that  this  special  report  should  be  presented  inde- 
pendently of  the  principal  report  of  the  committee;  it  was, 
however,  to  be  considered  as  supplementary  to  that  report. 

GENERAL. 

Purpose  and  Scope — The  primary  purposes  of  this  enter- 
prise were  to  submit  general  critical  judgments  upon  the  meth- 
ods of  teaching  a  .d  to  present  constructive  suggestions  for  the 
betterment  of  cl'iss  room  instruction.  The  special  character 
of  these  judgments  and  suggestions  has  been  determined  by 
the  high  level  upon  which  the  Boise  public  schools  are  oper- 
ated. They  have  been  formulated  with  the  understanding 
that  the  city  and  its  school  officials  desire  to  have  the  schools 
attain  the  highest  possible  usefulness. 

Basis — At  least  one  class  exercise  of  fourteen  of  the  twenty- 
nine  teachers  in  the  high  school  was  observed.  The  work  of 
thirty  elementary  school  teachers  was  observed  for  shorter  or 
longer  periods.  T  i  a  majority  of  cases  these  observations  were 
followed  by  a  conference  with  the  .teacher. 

The  Spint  of  the  Work — In  every  class  room,  high  and 
elementary,  the  spirit  of  earnestness  and  industry  on  the  part 
of  the  teacher  and  the  ready  responsiveness  of  pupils  were 
characteristic.  At  no  time  did  I  observe  the  slightest  act  on 
the  part  of  any  pupil  evidencing  a  disregard  of  those  condi- 
tions that  must  obtain  before  the  work  of  the  school  may  pro- 
ceed with  greatest  profit.  There  was  nothing  of  what  had  the 
appearance  of  "school"  discipline.  Throughout  there  was  self- 
control  without  government  or  the  imposition  of  authority. 

All  of  the  teachers  appear  to  be  in  possession  of  the  greatest 
freedom  in  the  conduct  of  their  work.  There  was  also  every 
evidence  of  a  desire  to  co-operate  in  any  effort  calculated  to 
improve  their  owr*  work.  They  constantly  welcomed  any  ef- 
fort to  assist  them. 

HIGH  SCHOOL.  . 

In  addition  to  a  number  of  matters  of  mechanical  and  minor 
importance  to  wUich  the  attention  of  the  Principal  of  the 
high  school  and  the  Superintendent  of  Schools  was  called,  the 
following  items  are  thought  worthy  of  consideration  in  the 
further  iniL rover ^ent  of  the  school : 


26 

Supervision — A  more  carefully  organized  plan  for  construc- 
tive class  room  supervision  by  the  principal  would,  without 
question,  serve  to  establish  better  standards  for  both  teachers 
and  pupils,  and  foi  the  better  correlation  of  the  work  of  the 
different  departments.  Under  the  present  arrangement  the 
major  time  and  energy  of  the  principal  are  drafted  off  for 
the  performance  of  routine  mechanical  tasks,  thereby  prevent- 
ing that  constant  watchfulness  necessary  for  the  attainmenc 
of  the  best  teaching  results  on  the  part  of  all  the  teachers  in 
the  school. 

Community  Adaptation — The  ideal  that  has  brought  the 
Boise  High  School  into  national  prominence  is  that  of  estab- 
lishing a  close  vital  connection  with  the  whole  life  of  the  com- 
munity which  it  serves.  This  ideal  has  been  fruitful  of  nu- 
merous successful  efforts  by  several  of  the  departments,  espec-  ' 
ially  the  departments  of  agriculture,  industrial  and  household 
arts.  It  is  believed  that  efforts  for  the  adaptation  of  the  in- 
struction to  present-day  community  social  needs  should  be 
made  by  all  of  the  departments  of  the  school,  even  those  de- 
partments where  stich  adaptation  is  more  ditficult.  In  par- 
ticular, I  feel  that  the  class  room  instruction  and  laboratory 
work  in  both  physics  and  chemistry  is  yet  of  the  formal  tra- 
ditional kind  and  does  not  approximate  what  is  now  the  es- 
tablished aim  of  instruction  in  the  school. 

Pupils — If  the  instruction  in  th.-^,  school  is  as  a  whole  not 
what  it  should  be.  according  to  the  most  critical  standards,  i  ' 
think  the  cause  may  be  found  in  the  absence  of  determined 
standards  of  accomplishment  for  pupils.  Such  standards  ap- 
pear to  be  greatly  needed  in  English.  The  written  work  of 
the  pupils  in  the  school  is  not,  as  a  whole,  what  it  should  be. 
It  has  been  suggested  to  the  department  of  English  that  steps 
be  taken  to  give  the  constructive  work  of  the  pupils  greater 
prominence  and  that  sorne  plan  be  devised  for  the  preservation 
of  the  principal  part  of  the  pupil's  written  work  throughout 
his  career  in  the  school.  No  pupil,  except  in  emergency  cases, 
should  be  permitted  to  pass  from  one  class  to  another  who  is 
seriously  deficient  in  the  English  standard  of  that  class. 

Records — The  system  of  records  of  pupils  now  in  the  school 
is  wholly  inadequate.  In  order  that  the  school  may  best  fulfill 
its  responsibility  to  pupils,  the  establishment  of  some  system 
that  will  eive  in  detail  the  record — intellectual,  moral     and 


27 

social — of  the  pupil  may  be  regarded  as  indispensible  in  the 
modern  school  that  desires  to  be  of  service  to  the  pupil,  not 
only  while  he  is  in  school,  but  until  he  finds  a  place  in  life. 

ELEMENTARY  SCHOOLS. 

General — In  all  the  elementary  schools  visited,  it  v^as  plainly 
evident  that  a  large  effort  has  been  made  to  select  competeni 
teachers  and  to  assign  them  to  that  work  for  which  they  were 
best  suited.  The  Superintendent  of  Schools  and  the  several  su- 
pervisors consider  each  class  and  each  teacher  as  representing 
a  special  situation  and  as  requiring  mdividual  methods  or 
direction. 

I  saw  some  teaching  of  the  highest  grade ;  I  saw  much  that 
was  very  good ;  and  some  that  was  mediocre.  I  saw  no  teacher 
whose  work  would  be  classified  as  distinctly  poor.  In  all 
grades  the  teachers  have  been  led  to  plan  each  day's  work  and 
to  accomplish  a  definite  result  in  each  recitation.  The  range 
and  amount  of  supplemental  work  done  in  each  subject  are 
significant  of  the  progressive  attitudes  of  the  supervisory  staff 
toward  the  teachers,  and  of  the  teachers  toward  their  own 
duties. 

Over-Age  and  Instruction — In  certain  of  the  schools  which 
have  been  recently  annexed  to  the  Independent  School  District 
of  Boise  (Washington  and  Garfield),  the  number  of  over-age 
pupils  in  the  upper  grades  was  noticeable.  This  is,  however, 
explained  by  the  fact  of  annexation.  The  absence  of  over-age 
pupils  in  the  lower  grades  of  these  schools  is  evidence  of  the 
positive  influence  of  the  existing  methods  and  organization  in 
bringing  about  more  effective  instruction  and  consequently 
a  better  classification  of  pupils. 

Departmental  Instruction — In  all  of  the  elementary  schools 
departmental  instruction  obtains  in  the  seventh  and  eighth 
grades  (the  sixth  also  in  some  schools).  This  departmental 
instruction  represents  the  best  that  has  come  under  my  obser- 
vation. The  departmental  teachers  exhibit  a  high  degree  of 
competency;  and  what  is  more  important,  their  broader  in- 
terest in  the  welfare  of  the  individual  pupils  has  not  been 
lessened. 

Grade  Siandards^ln  any  school  system  which  is  being  de- 
veloped in  the  rational  and  progressive  manner,  as  is  the  case 
of  Boise,  there  is  an  increasing  need  of  establishing  in    the 


28 

minds  of  pupils  and  teachers,  especially  teachers,  definite 
standards  of  accomplishment  for  the  pupils  in  each  class.  There 
is  yet  a  large  opportunity  for  the  supervisors  and  teachers  in 
co-operation  to  work  out  standards  that  will  present  a  goal  to 
teachers  and  serve  as  stimuli  to  pupils.  Such  standards  would, 
of  course,  take  into  special  account  those  numerous  cases  of 
pupils  for  whom  the  ordinary  regime  of  the  school  is  not  read- 
ily adaptable.  One  of  the  grave  dangers  of  the  modern  public 
school  is  that  the  pupil  will  become  a  mere  time-server  instead 
of  being  accustomed  to  the  performance  of  definite  recognized 
results.  The  absence  of  such  standards  is  to  be  plainly  ob- 
served in  the  writing  of  pupils  throughout  the  elementary 
schools.  I  have  suggested  to  the  Superintendent  of  Schools 
and  the  supervisors  that  a  large  use  be  made  of  certain  recog- 
nized standards  for  elementary  school  subjects.  Such  stand- 
ards now  exist  in  arithmetic,  writing  and  composition.  There 
is  no  reason  why  local  standards  might  not  be  developed  for  the 
other  subjects  fo^-  the  purpose  of  determining  and  regulating 
the  advancement  of  pupils. 

CONCLUSION. 

I  cannot  refrain  from  emphasizing  one  conspicuous  feature 
of  the  work  of  all  the  schools ;  that  is,  the  recognition  on  the 
part  of  all  supervisors  and  teachers  that  the  work  of  the  schools 
is  not  perfect  a:nd  that  they  have  not  rendered  their  full  re- 
sponsibility to  the  community  and  to  children  until  every  indi- 
vidual and  collective  endeavor  has  been  made  to  accomplish 
larger  and  more  effective  results.  The  teaching  and  supervis- 
ory staff  of  the  Boise  schools  is  characterized  by  the  absence  of 
any  professional  self-satisfaction.  This  may  be  regarded  as 
the  biggest  asset  of  the  schools  and  the  children,  for  it  underlies 
all  fruitful  progress  in  public  education. 

Very  respectfully  submitted. 

EDWARD  C  ELLIOTT. 


RECOMMENDATIONS. 

I.  That  the  School  Day,  the  School  Week  and  the  School 
Year  he  Lengthened,  in  order  better  to  adapt  the  course  of 
study  and  to  utilize  completely  the  school  plant.  (Page  3)  , 


29 

II.  That  the  Eighth  Grade  he  Eliminated  in  accordance 
study  and  to  utilize  completely  the  school  plant.  (Page  3). 

III.  That  the  High  School  Course  of  Instruction  he  Ex- 
tended by  giving  advanced  courses  ordinarily  given  in  the  first 
years  of  college,  (Page  4). 

IV.  That  the  Work  of  the  Supervisory  Staff  he  Developed 
by,  (a)  continuing  and  changing  exhibits  of  school  work,  (b) 
demonstration  lessens,  (c)  the  co-operation  of  teachers  in  the 
making  of  courses  of  study.  (Pages  5  and  6). 

V.  That  a  Systematic  Record  of  Teachers  as  to  training, 
experience,  appointment,  promotion  and  performance  be  insti- 
tuted.    (Page  8). 

VI.  That  Special  Classes  for  Slow  and  Backward  Children 
he  Estahlished.  (Page  11.) 

VII.  That  a  System  of  Cumulative  Records  of  Pupils  he 
Instituted.  (Page  12). 

GENERAL  SUMMARY. 

The  principal  conclusions  and  recommendations  of  the  com- 
mittee are  enumerated  in  brief  form  in  the  following  para- 
graphs : 

CONCLUSIONS. 

A.  As  to  the  Course  of  Study :  This  has  been  arranged  on  a 
comprehensive  basis  with  proper  attention  to  fundamentals 
and  with  a  commendable  effort  to  adapt  the  instruction  in  the 
schools  to  the  practical  demands  of  modern  community  life. 

B.  The  supervisory  staff  is  organized  in  accordance  with 
the  practice  prevailing  in  the  most  progressive  cities  of  the 
United  States.  There  is  evidence  of  complete  co-operation  be- 
tween the  supervisors  and  the  teachers.  Further  co-operation 
between  the  several  supervisors  of  the  elementary  schools  and 
the  high  school  is  suggested. 

C.  As  to  the  Teaching  Staff:  A  high  standard  of  quali- 
fication has  been  maintained  for  the  teaching  staff.  In  the 
matter  of  selection,  salary  and  tenure  of  teaching  the  present 
practices  represent  an  enlightened  and  progressive  school 
policy. 

D.  As  to  the  Classification  and  Progress  of  Children 
Through  the  School  System:    By  comparison  with  318  other 


30 

cities  in  the  United  States,  there  is  definite  evidence  that  the 
problem  of  the  proper  classification  of  children  as  to  over-age 
is  being  successfully  handled ;  that  adequate  provision  has  been 
made  to  permit  children  of  unusual  ability  to  advance  rapidly ; 
that  pupils  are  retained  in  school  to  an  extent  that  is  equaled 
by  very  few  cities. 

E.  As  io  the  School  Plant:  This  is  in  a  highly  satisfac- 
tory condition.  The  present  policy  of  the  school  authorities  as 
to  the  selection  of  sites,  the  construction,  repair  and  care  ot 
school  buildings,  and  the  provision  for  play  parks  is  approved. 

F.  As  to  School  Expenditures :  On  the  basis  of  a  compari- 
son with  37  selected  cities,  it  is  found  that,  (a)  owing  to  the 
high  qualifications  of  teachers  and  the  variety  of  school  activi- 
ties Boise  ranks  fairly  high  in  the  cost  of  elementary  educa- 
tion; (b)  owing  to  careful  management,  the  cost  of  high 
school  education  in  Boise  is  less  than  in  half  of  the  other 
cities;  (c)  owing  to  the  very  large  percentage  of  children  in 
the  high  school,  Boise  devotes  to  the  high  school  a  relatively 
large  proportion  ^f  all  the  money  spent  for  public  education; 
(d)  a  larger  part  than  is  customary  of  the  money  available  for 
public  education  is  devoted  to  paying  for  instruction,  and  a 
smaller  part  for  maintenance  and  operation  of  the  plant. 

G.  As  to  Community  Co-operation :  The  community  and 
the  school  system  co-operate  in  a  most  commendable  manner 
The  school  officials  enjoy  the  general  confidence  of  the  com- 
munity and  receive  its  undivided  support  in  their  efforts  to 
develop  the  school  system  to  the  highest  possible  degree  of 
effectiveness. 


ABSTRACT  OF   SUPPLEMENTARY   REPORT   ON 

TEACHING. 

(Edward  C.  Elliott.) 

There  is  a  characteristic  spirit  of  earnestness  and  industry  on 
the  part  of  the  teachers  and  supervisors,  and  a  ready  respon- 
siveness on  the  part  of  pupils.    The  schools  are  self-controlled. 

The  ideal  that  has  brought  the  Boise  High  School  into 
national  prominence  is  that  of  establishing  a  close  vital  connec- 
tion with  the  whole  life  of  the  community. 

The  most  conspicuous    feature  of  the  school  system  is  the 


31 

attitude  of  the  supervisors  and  teachers  that  the  work  of  the 
schools  is  not  perfect  and  that  they  have  not  rendered  their 
full  responsibilitv  to  the  city  and  to  the  children  until  further 
individual  and  collective  endeavors  have  been  made  to  accom- 
plish larger  and  more  effective  results. 

EDWARD  C.  ELLIOTT, 
Professor  of  Bducation  and  Director  of  Course  of  Training 
of  Teachers,  University  of  Wisconsin. 

CHAS.  H.  JUDD, 
Direct 07   of  School  of  Education,  Professor  of  Education, 
University  of  Chicago. 

GEORGE  D.  STRAYER, 
Head  of  Department  and  Professor  of  Educational  Adminis- 
tration, Teachers   College,  Columbia  University. 


THIS  BOOK  IS  DTTE  ON  THE  LAST  DATE 
STAMPED  BELOW 

AN  INITIAL  FINE  OF  25  CENTS 

ru'r^^^  ASSESSED  FOR  FAILURE  TO  RETURN 
THIS  BOOK  ON  THE  DATE  DUE.  THE  PENALTY 
WILL  INCREASE  TO  50  CENTS  ON  THE  FOUR^ 

oCerdue.  '"   ^^"°   °^   ^"^  seventh'SIv 


JHBffI4T842 
jg  1943 


Oaylord  Bros, 

Makers 

Syracuse  N.  Y. 

PAT.  JAI.21.1808 


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